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Committees
17.251/252
Fall 2015
Wilson’s Famous Quote
• Congress in session
is Congress on public
exhibition, whilst
Congress in its
committee-rooms is
Congress at work.
Organization
• Mechanics
• Theoretical perspectives on committees
What do Committees Do?
• Study issues and provide expertise
• Channel ambition
• Provide for representation of groups
Development of Committees
• House
– Slow to develop (Hamilton)
– Short leash
– Gradual increase under Clay
• Senate
– Even slower
– 1819 boom
10 20 30 40 50 60 70 80 90 100
(1807) (1827) (1847) (1867) (1887) (1907) (1927) (1947) (1967) (1987)Congress
0
50
100
150
200
250
300Nu
mbe
r of c
omm
ittee
s
Select
Standing
10 20 30 40 50 60 70 80 90 100
(1807) (1827) (1847) (1867) (1887) (1907) (1927) (1947) (1967) (1987)Congress
0
50
100
150
200
250
300
Num
ber o
f com
mitt
ees
Standing
Select
a. House
b. Senate
House/Senate comparisons
• House more reliant on committees than
the Senate
– House more specialized
– First-mover advantage may give Ways and
Means even great power
Types of committees
Type Can originate
legislation
Standing ✔ ✔
Select/special ✔
Joint
Conference
Committees in the 114th Congress House
Standing
• Agriculture
• Appropriations
• Armed Services
• Budget
• Education and the Workforce
• Energy and Commerce
• Ethics
• Financial Services
• Foreign Affairs
• Homeland Security
• House Administration
• Judiciary
• Natural Resources
• Oversight and Government Reform
• Rules
• Science, Space and Technology
• Small Business
• Transportation and Infrastructure
• Veterans Affairs
• Ways and Means
Select
• Permanent Intelligence
• Benghazi
Senate
Standing
• Agriculture, Nutrition, and Forestry
• Appropriations
• Armed Services
• Banking, Housing, and Urban Affairs
• Budget
• Commerce, Science, and Transportation
• Energy and Natural Resources
• Environment and Public Works
• Finance
• Foreign Relations
• Health, Education, Labor, and Pensions
• Homeland Security and Governmental Affairs
• Judiciary
• Rules and Administration
• Small Business and Entrepreneurship
• Veterans Affairs
Select
• Indian Affairs
• Ethics
• Intelligence
• Aging Joint
Economic
Library
Printing
Taxation
Membership
• Party ratios
– Renegotiated every Congress
• Sometimes a bone of contention with minority party
– There is usually a bonus given to the majority party
– Special bonus for certain committees
• House right now: >=1.4:1 for “important” committees, closer
to 1.3:1 for others
– House Ag: 26/18, Fin. Svc., 34/26; Ed: 22/16,
– HAC: 30/21, Rules: 9/4, WAM: 23/15
• Senate: Reps have a majority of 2 on most committees
How Committee members are
chosen • Party committees make choices
– House tends to rely on party committees
– Senate tends to go by seniority • Republicans pure seniority
• Democrats weight seniority highest
• Formal and informal constraints – Property rights in committee assignments arose around the turn of the last century
– Allocation restrictions • Senate
– “Johnson rule” most famous
– All junior senators get one “good” assignment before a senior senator gets a second – Rules, create “A,” “B,” and “C” committees*
» A: Agriculture; Appropriations; Armed Services; Banking; Commerce; Energy; Environment; Finance; Foreign Relations; HELP; Homeland Security; Judiciary; Select Intelligence [limit of 2]
» B: Budget; Rules and Administration; Small Business; Veterans’ Affairs; Special Aging; JEC [may serve on 1]
» C: Select Ethics; Indian Affairs; Joint Taxation; Joint Library; Joint Printing [may serve on one or more]
• “Super A” Committees: Senate in bold and Democrats underlined. [limit 1]
• House – Dems & Reps have created “exclusive committees:” Appropriations, Ways and Means, Energy &
Commerce; Financial Services
*From 113th Congress; seems to be in force in the 114th
House Committee Chairs
• Agriculture – Conaway (TX)
• Appropriations – Rogers (KY)
• Armed Services – Thornberry (TX)
• Budget – Price (GA)
• Education and the Workforce – Kline (MN)
• Energy and Commerce – Upton (MI)
• Ethics – Dent (PA)
• Financial Services – Hensarling (TX)
• Foreign Affairs – Royce (CA)
• Homeland Security – McCaul (TX)
• House Administration – Miller (MI)
• Judiciary – Goodlatte (VA)
• Natural Resources – Bishop (UT)
• Oversight – Chaffetz (UT)
• Rules – Sessions (TX)
• Science – Smith (TX)
• Small Business – Chabot (OH)
• Transportation – Shuster (PA)
• Veterans’ Affairs – Miller (FL)
• Ways and Means – Ryan (WI)
• Permanent Select Intelligence – Miller (FL)
Senate Committee Chairs
• Agriculture – Roberts (KS)
• Appropriations – Cochran (MS)
• Armed Services – McCain (AZ)
• Banking – Shelby (AL)
• Budget – Enzi (WY)
• Commerce – Thune (SD)
• Energy – Murkowski (AK)
• Environment – Inhofe (OK)
• Finance – Hatch (UT)`
• Foreign Relations – Corker (TN)
• HELP – Alexander (TN)
• Homeland Security – Johnson (WI)
• Judiciary – Grassley
• Rules and Administration – Blunt (MO)
• Indian Affairs – Barrasso (WY)
• Select Ethics – Isakson (GA)
• Select Intelligence – Burr (NC)
• Special Aging – Collins (ME)
Chairs
• Seniority system: the practice of reserving the chairs of committees for the most senior member (on that committee) – Result of revolt against Cannon
– Senate: pretty inviolate until recently, with bidding (+ 6-yr term limit for R’s)
• Senate Byrd/Biden shuffle (next slide)
• 114th Congress: committees choose their chairs, ratified by the Conference
– House • Democrats in 1970s put chairs up to confirmatory vote
– 2008 deposition of Dingell by Henry Waxman similar to Les Aspin’s deposition of Melvin Price in 1985
– Scrapped term limits in 2008; currently agitation to bring them back.
• Republicans – 1970s put ranking members up to confirmatory vote
– 1994: term limits (6 years) plus vote of caucus
» 2000: Affected virtually every chair (ideology + $$ mattered)
Senate chair shuffle in 111th Cong.
• Byrd cascade – Appropriations: Byrd (WV) Inouye (HI) [Commerce]
– Commerce: Inouye (HI) Rockefeller (WV) [Select Intelligence]
– Select Intelligence: Rockefeller (WV) Feinstein (CA) [Rules and Administration]
– Rules and Administration: Feinstein (CA) Schumer (NY) [Jumping over Byrd, Inouye, Dodd]
• Biden cascade • What could have been
• Foreign Relations: Biden (DE) Dodd (CT) [Banking]
• Banking: Dodd (CT) Tim Johnson (SD) [Ethics] (?) / Reed (RI)
• Ethics: Possible shuffle, depending on what Johnson does;
– Instead: • Biden (DE) Kerry (MA) [Small Business & Entre.]
• Kerry (LA) Landrieu (LA) (Jumping over Harkin (IA) and Lieberman)
114th Cong example:
House Ways and Means
113th Cong.:
Ryan, who chairs the House Budget Committee, has long been expected to lead the
GOP’s legislative push next year to reform the U.S. tax code, and has been hinting at his
playbook in interviews this month.
Brady said that he has raised more than $4 million ahead of the midterm elections, citing
his combined fundraising for his political action committee, his House campaign, and the
National Republican Congressional Committee. He called his haul a sign of his ability to
raise money for committee members
“The expectations are very high for the next chairman, both on policy and on financial
support for others,” Brady said. “I’m determined to exceed every one of those
expectations.”
Ryan is one of the GOP’s most prolific fundraisers. He has millions in his campaign
account and over the summer he donated more than $1 million to the NRCC. Brady said
Thursday that he would match Ryan and committed to give $1 million to the NRCC as
November’s elections neared.
Subcommittees and Their Role
• Subcommittees sometimes just smaller versions of committees
• The congressional receptor for the “Iron Triangle”
• Increasing importance of subcommittees
• “Subcommittee bill of rights” in 1973 (House Dems) – Written jurisdictions
– Members given rights to pick memberships and bid for chairmanships
Staff and Resources
• Varies by committees
– Number
– Who controls
Moving To and Fro
• If there are property rights in committee
seats, then a transfer reveals a preference
for Committeenew over Committeeold
• This gives rise to independent measures
of committee value (see table 8-6)
Grosewart Scores for the House
95th-112th Congress Ways & Means 2.42
Energy & Commerce 1.64
Appropriations 0.94
Rules 0.29
Foreign Affairs 0.17
Financial Services 0.15
Armed Services 0.14
Judiciary 0.06
Ethics -0.03
House Administration -0.04
Budget -0.13
Transportation & Infrastructure -0.18
Natural Resources -0.22
Oversight & Government Reform -0.33
Education & the Workforce -0.37
Agriculture -0.40
Veterans Affairs -046
Science, Space, & Technology -0.54
Homeland Security -0.54
Hearings
• Civics book perspective on hearings is incomplete
– Information-gathering (substantive and political)
– Build the public record
– Symbolism
– Establish jurisdiction
• Put together by staff
• Rarely change minds
http://www.c-span.org/video/?186877-
1/border-patrol-agents
The Markup
Committees to Know About
• House – Rules
– Appropriations
– Ways and Means
– Budget
• Senate – Finance
– Appropriations
– Budget
– Judiciary
– Foreign Relations
Theoretical perspectives on
committees
• “Distributive” theories
– Agenda setting (the setter model)
– Gate-keeping
– Structure-induced equilibrium view
– “Stacking”
• Information theories
The “Setter Model” Reprised
• Romer and Rosenthal
– An agenda-setter has power to offer a “take it
or leave it” motion.
– If the agenda-setter is “high demand” and the
reversion point is well below the median’s
ideal point, the agenda-setter makes out like a
bandit
Q M S
W(Q)
Proposal
Application of Setter Model to
Committees
• Easy to think of committees as providing “take it or leave it” propositions and being composed of “high demanders” – “deference” to committees
– Supposed “self-selection” on committees
• Problems with this view – “high demand committees” hard to sustain in a
majoritarian institution • Empirical evidence mixed
• Amendment opportunities galore
– Status quo rarely so Draconian
Gatekeeping
• Gatekeeping is the right of a committee to
decide to keep an item off the floor if it
doesn’t want action.
• Usually thought of in a majoritarian setting
• Example:
– Classic case: Civil Rights legislation
Applicability of the View
• Corresponds to practical application of rules (esp. in House)
• Problems with view – Majoritarian objection (again)
• The Senate, especially, has ways around committees
• Other ways around gatekeeping – Discharge
– “speaker discharge”
• Committee changes in House since 1994 have aligned the committees more with parties
– Note that this is definitely a negative power
Structure-Induced Equilibrium View
• Combines gate-keeping with a certain
view of jurisdictions
– “Explains” (or at least illustrates) two stylized
facts
• Stability
• “capture”
SIE: The Picture
Guns
Butter
Gun committee
Butter committee
Q
CG MG QG
CB
QB
MG
Q*
Compare with the Pareto Set
Guns
Butter
Butter committee
Q Q*
Some Comments About This View
• Why it’s called the “gains from trade” view
• Majoritarian objection very clear from the “out of the Pareto set” result in the example
• Nonetheless, if the majoritarian objection doesn’t hold, this is an attractive descriptive view of much of policymaking + an explanation for why “everyone” can be dissatisfied with the current state of policy
Informational View
• Fundamentally different from other modern
views
• While “rational choice,” more in
consonance with more traditional views
Sum-up points